Employment Service Convention, 1948 (No. 88) - Ghana (Ratification: 1961)

Direct Request (CEACR) - adopted 2024, published 113rd ILC session (2025)

Articles 1, 2 and 3 of the Convention. Contribution of the employment service to employment promotion. The Committee previously requested the Government to provide more specific information on the activities of the public employment centres and youth employment centres and on the contribution of these centres to the implementation of a national employment policy. The Government refers in its report to sections 3 and 4 of the 2003 Labour Act, which relate to the activities of the public employment centres. It also points to the contributions made by the public employment centres and youth employment centres, including: (i) canvassing for job vacancies through employers and placement of job applicants; (ii) providing vocational guidance and counselling, especially with regard to job vacancies for young persons to be trained and placed on such jobs without difficulties; (iii) providing counselling for migrant jobseekers; and (iv) generating data for socio-economic development and for research and planning purposes. The Committee notes the Government’s indication that there are 64 public employment centres in the country that registered 3,490 registered jobseekers in 2021, and placed 1,627 jobseekers in employment. Moreover, the Government indicates that there are ongoing works to establish 16 additional public employment centres across the country, with the financial support from the World Bank. These additional centres would help ensure that employment services centres are brought closer and are more accessible to jobseekers or applicants throughout the country. The Committee considers that these represent important measures aimed at making the public employment service (PES) more present throughout the national territory in view of the fact that the country is facing important challenges to structure its informal economy, which accounts for approximately 90 per cent of total employment. The Committee wishes to stress that by implementing integrated strategies, the PES can indeed play a crucial role in facilitating the transition from informal to formal employment, thereby contributing to economic growth and decent work objectives. Such integrated strategies include: (i) developing the offer for vocational training, apprenticeships, and continuous professional development to enhance the employability of workers currently working in the informal economy; (ii) improving job matching services so as to connect informal workers with formal job opportunities, which involves creating and maintaining a comprehensive database of jobseekers and vacancies, and using technology to match them effectively; (iii) educating informal workers about the benefits of formal employment, such as job security, social protection, and better working conditions; (iv) supporting small and medium enterprises (SMEs) which often employ many informal workers and providing support to these businesses to formalize, such as access to finance, business development services, and simplified registration processes; and (v) running advocacy campaigns for policies that make formal employment more attractive and accessible and collaborating with other stakeholders, such as private sector employers, educational institutions, and non-governmental organizations so as to enhance the effectiveness of PES initiatives, gather additional resources and expertise (See Public employment services and active labour market policies for transitions: Responses to mega trends and crises, ILO https://www.ilo.org/media/361921/download). In view of the above,the Committee requests the Government to provide more detailed information on the results of the activities carried out by the public employment centres and youth employment centres with a view to promoting full employment and transitions from informality to formality. It also requests the Government to continue to provide information on the number of public employment centres established, the number of applications for employment received, the number of vacancies notified and the number of persons placed in employment by such centres, indicating progress made in order to strengthen the placement capacities of the public employment service.

Articles 4 and 5. Cooperation with the social partners. The Government indicates that it wishes to assure the Committee of its utmost continuous engagement with the employers and workers organizations in its deliberations on employment services. It adds that the activities of the National Tripartite Committee with regard to the Convention include the following: (i) discussion on the possible means of preventing redundancy exercises which will lead to job losses; (ii) discussion on the alternatives to averting the hardship of employees and employers through government stimulus packages; (iii) soliciting information from employers to determine the employment situation in the country; and (iv) discussion on matters in relation to the provision of job opportunities for the youth and youth entrepreneurship. The Government further indicates that the National Tripartite Committee considers social and economic situations to ensure a favourable employment situation in the country. The Committee requests the Government to provide more specific information on the contributions made by the social partners within the National Tripartite Committee or any other tripartite body in the organization and operation of the public employment centres and youth employment centresand the development of employment service policy.

Article 8. Special arrangements for young people. In response to the Committee’s previous comments, the Government refers to a 2021 statistical report and indicates that, in terms of impact, the public employment centres were able to provide counselling and vocational guidance to over 4,845 young persons across the centres. The Government further indicates that every year students are provided with vocational guidance and counselling in collaboration with the Ghana Education Service and the social partners. The Committee requests the Government to provide more detailed information on the impact of the special arrangements for young people initiated and developed within the framework of the employment and vocational guidance services. The Government is also requested to indicate the measures taken to address the challenges related to youth underemployment and provide relevant statistical data in this respect. It also once again requests the Government to provide information on the activities of the youth employment centres and on their impact.

Article 11. Cooperation between the public employment service and private employment agencies. The Committee notes the information provided by the Government on the measures taken to ensure cooperation between public employment centres and private employment agencies. While both public and private agencies provide employment opportunities to Ghanaians within and outside Ghana, the nature of their work is complimentary rather than competitive. Public employment centres and private employment agencies collaborate by exchanging information on labour market conditions to facilitate job placements and reduce waiting time for employers to fill vacancies. The Government adds that legislation imposes an obligation on licensed private employment agencies to submit employment information, including job placements, to the Labour Department on a quarterly basis. Both public and private agencies also hold stakeholder engagement meetings to discuss solutions to emerging labour market issues or challenges. The Committee requests the Government to continue to provide updated information on the measures taken to ensure effective cooperation between the public employment service and private employment agencies, including more specific information on the meetings held to discuss labour market challenges. It also requests information on the number of private employment agencies operating in Ghana.

In addition, the Committee wishes to refer to its direct request on the application of the Fee-Charging Employment Agencies Convention (Revised), 1949 (No. 96), with regard to the steps taken, in consultation with the social partners, to ratify the Private Employment Agencies Convention, 1997 (No. 181).

Direct Request (CEACR) - adopted 2016, published 106th ILC session (2017)

The Committee notes the observations of the Ghana Employers’ Association (GEA) communicated with the Government’s report.

Articles 1, 2 and 3 of the Convention. Contribution of the employment service to employment promotion. The Government indicates in its report that the National Employment Service is responsible to assist unemployed and those in search of alternative employment to find suitable employment and assist employers to find suitable workers from among these jobseekers. The National Employment Service operates through a network of 67 public employment centres, five of which are youth employment centres. The GEA indicates that it has also contributed to improve the services of the public employment centres established throughout the country. The Committee requests the Government to provide more specific information on the activities of the public employment centres and youth employment centres and on the contribution of these centres to the implementation of a national employment policy. It also requests the Government to provide information on the number of public employment centres established, the number of applications for employment received, the number of vacancies notified and the number of persons placed in employment by such centres.

Articles 4 and 5. Cooperation with the social partners. The Committee notes with interest that the Government and the GEA both indicate that the National Tripartite Committee has been used by the social partners as a platform to consensually agree on a number of issues regarding employment and other economic and social matters. The GEA adds that it appreciates the existing cooperation among the social partners. The Committee requests the Government to continue to provide information on the participation of representatives of employers and workers in the operation of the employment service.

Article 8. Special arrangements for young people. The Government reiterates that youth employment centres have been established to cater to the needs of the youth by providing vocational guidance to persons not above 20 years of age. The Committee requests the Government to provide further information on the impact of the special arrangements for young people initiated and developed within the framework of the employment and vocational guidance services. Please provide in this regard information on the activities of the youth employment centres and on their impact.

Article 11. Cooperation between the public employment service and private employment agencies. The Government indicates that there are 75 private employment agencies operating in Ghana. It adds that they operate hand in hand with the public employment service. The Committee refers to its 2015 direct request on the application of the Fee-Charging Employment Agencies Convention (Revised), 1949 (No. 96), with regard to the steps taken, in consultation with the social partners, to ratify the Private Employment Agencies Convention, 1997 (No. 181). The Committee requests the Government to provide more specific information on the measures taken to ensure effective cooperation between the public employment service and private employment agencies.

Observation (CEACR) - adopted 2011, published 101st ILC session (2012)

Articles 1, 2 and 3 of the Convention. Contribution of the employment service to employment promotion. Request for ILO technical assistance. The Committee notes the information supplied by the Government in the report received in November 2010, including comments submitted by the Ghana Employers’ Association (GEA). The Government indicates that the National Employment Service is responsible for ensuring equal access to employment for all and organizing the labour market for the creation and maintenance of employment opportunities. This operates through a network of 67 public employment centres and youth employment centres spread throughout the country. They operate hand-in-hand with private employment agencies. The GEA states that over the years it “has not fully appreciated the efforts to improve the services of the public employment centres” and indicates that services provided at these centres are unreliable and inaccessible to both employees and jobseekers. The GEA has drawn the Government’s attention to improve conditions at the centres in order to promote employment in the country. The Government reports that it acknowledges the need to strengthen the public employment service and collaboration with private employment agencies to meet the new requirements of the economy and the working population. In this regard, the Committee notes that the Government requested ILO technical assistance to modernize the employment service. The Committee invites the Government to provide in its next report information on the activities of the public employment centres and the contribution of these centres to the implementation of a national employment policy. It also invites the Government to include information on the number of public employment centres established, applications for employment received, vacancies notified and persons placed in employment by such centres (Part IV of the report form). With regard to the Government’s request for technical assistance, the Committee hopes that the Office will respond favourably to the request. It further invites the Government to report on any new measures taken to build institutions for the realization of full employment and encourages its support for the ratification of the Employment Policy Convention, 1964 (No. 122).

Articles 4 and 5. Cooperation with the social partners. The Government reports that the National Tripartite Committee has been used by the social partners as a platform to consensually agree on a number of issues regarding employment and other economic and social matters. The Committee invites the Government to provide specific information on the participation of representatives of employers and workers in the operation of the employment service.

Article 8. Special arrangements for young people. The Government indicates that youth employment centres have been established to cater to the needs of the youth by providing vocational guidance to persons not above 20 years of age. Youth employment services are rendered at public employment centres in areas of the country without youth employment offices. The Committee requests the Government to provide detailed information on special arrangements for young people initiated and developed within the framework of the employment and vocational guidance services.

Article 11. Cooperation with private employment agencies. The Government indicates that there are 75 private employment agencies operating in Ghana. These agencies are licensed and monitored by the Labour Department and are required to submit periodic reports on their activities. The Committee refers to its 2010 observation on the application of the Fee-Charging Employment Agencies Convention (Revised), 1949 (No. 96), with regard to the steps agreed, in consultation with the social partners, to ratify the Private Employment Agencies Convention, 1997 (No. 181). The Committee requests the Government to indicate in its next report on Convention No. 88 the measures taken to ensure effective cooperation between the public employment service and private employment agencies, including information on steps taken in consultation with the social partners to ratify Convention No. 181.

Direct Request (CEACR) - adopted 2006, published 96th ILC session (2007)

1. Contribution of the employment service to employment promotion. The Committee notes with interest the information supplied by the Government in the report received in June 2006 indicating that Ghana enacted a new Labour Act in October 2003 providing for the establishment of public employment centres, which have the duty to freely assist persons, both unemployed and employed, in securing suitable employment and also to assist employers in finding suitable workers from among the persons that come to the centres. The Government also reports that the employment service operates through a network of 62 centres nationwide and five youth employment centres situated in Accra, Takioradi, Kumasi, Cape Coast and Tamale. The Government supplied in its report data on the registration and counselling of jobseekers in 2003 by the Labour Department. The Committee therefore asks the Government to continue providing detailed information on the application of the Convention and recalls the need to ensure the essential duty of the employment service and its adjustment to meet the new requirements of the economy and the working population, including special arrangements for young people (Articles 1, 3, and 8 of the Convention). It hopes that the Government will include statistical information published in annual or periodical reports on the number of public employment centres established, applications for employment received, vacancies notified and persons placed in employment by such centres (Part IV of the report form). Please also provide information on the activities of the public employment centres and the effects noted or expected on employment as a result of the implementation of the Ghana poverty reduction strategy.

2. Cooperation with the social partners. In its previous comments, the Committee requested the Government to report on the measures adopted to establish advisory committees in order to secure the full cooperation of employers’ and workers’ representatives in the organization and operation of the employment service. It notes with interest that the National Tripartite Committee (NTC) – comprised of Government, Ghana Employers’ Association (GEA) and labour representatives – has been mandated under section 113(c) of the Labour Act, 2003, to consult with partners in the labour market on matters of social and economic importance. The Government adds that the forum provides advisory services for the operation of the employment service and the development of employment service policy. The Committee requests the Government to continue to supply it with information on the active participation of representatives of employers and workers in the operation of the employment service (Articles 4 and 5).

3. Measures to protect workers from trafficking. In its previous comments, the Committee recalled that the Office held a tripartite workshop in July 2005 on the regulation and monitoring of private recruitment agencies, in particular to combat trafficking in Ghana. It notes that section 7(2) of the Labour Act, 2003, provides for the establishment of private employment agencies. It notes that necessary measures shall be taken to secure effective cooperation between the public employment service and private employment agencies (Article 11 of Convention No. 88). It refers to its 2006 observation on the application of the Fee-Charging Employment Agencies Convention (Revised), 1949 (No. 96), and requests the Government to indicate in its next report the arrangements made to give effect to Article 11 of Convention No. 88.

Direct Request (CEACR) - adopted 2005, published 95th ILC session (2006)

1. The Committee notes that the Government’s report has not been received. It recalls its 2000 direct request, in which it noted that the advisory committees had ceased to function due to budgetary constraints, and that the Government would appreciate receiving technical assistance from the Office to help it overcome this problem. The Government had also requested technical assistance to help train its staff in modern employment service methods. The Committee understands that the Office has held a tripartite workshop in July 2005 on regulation and monitoring of private recruitment agencies, in particular to combat trafficking in Ghana. The Committee hopes that the Office will be able to provide the assistance requested to ensure the essential function of employment services to achieve the best possible organization of the employment market, including adapting them to meet the new needs of the economy and of the active population (Articles 1 and 3 of the Convention). It asks the Government to report on the measures adopted to establish advisory committees in order to secure the full cooperation of employers’ and workers’ representatives in the organization and operation of the employment service (Articles 4 and 5) and on the measures taken to secure effective cooperation between the public employment service and private employment agencies (Article 11).

2. The Committee further requests the Government to provide the statistical information available in published annual or periodical reports concerning the number of public employment offices established, the number of applications for employment received, the number of vacancies notified and the number of persons placed in employment by such offices (Part IV of the report form).

[The Government is asked to reply in detail to the present comments in 2006.]

Direct Request (CEACR) - adopted 2000, published 89th ILC session (2001)

Article 4 of the Convention.  The Committee notes the information contained in the Government’s detailed report. It notes in particular the Government’s statement that the advisory committees have ceased to function due to budgetary constraints, and that the Government would appreciate receiving technical assistance from the Office to help it overcome this problem. The Government also requests technical assistance to help train its staff in modern employment service methods. The Committee hopes that the Office will be able to provide the assistance requested, and that the Government will resume in the near future operation of the advisory committees.

The Committee also notes that the Government is in the process of harmonizing the employment service with the needs of the economy and the labour market. It would appreciate being kept informed of these changes and their impact on the provision of employment services.